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HomeMy WebLinkAboutPSD-070-11 Clarington PLANNING VI Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE Date: September 12, 2011 Resolution #: - 4sy-law #: N/A Report #: PSD-070-11 File #: ROPA-2011-0004 Subject: APPLICATION TO AMEND THE DURHAM REGIONAL OFFICIAL PLAN TO EXTEND MUNICIPAL SERVICES TO THE PROPOSED DURHAM REGIONAL POLICE SERVICE FACILITY APPLICANT: REGIONAL MUNICIPALITY OF DURHAM RECOMMENDATIONS: It is respectfully recommended that the General Purpose and Administration Committee recommend to Council the following: 1. THAT Report PSD-070-11 be received; 2. THAT the Regional Municipality of Durham be advised that the Municipality of Clarington has no objections with the approval of application ROPA-2011-0004, by the Region, provided that the Regional Municipality of Durham is satisfied that the application demonstrates compliance with all relevant provincial policies; 3. THAT the Regional Municipality of Durham Planning Department be sent a copy of Report PSD-070-11; and 4. THAT all interested parties listed in Report PSD-070-11 and any delegations be advised of Council's decision. Submitted by: � ' Reviewed D v ,T . Crome, MCIP, RPP Franklin Wu, Director of Planning Services Chief Administrative Officer TW/CP/av/df 24 August 2011 CORPORATION OF THE MUNICIPALITY OF CLARINGTON 40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L1C 3A6 T 905-623-3379 REPORT NO.: PSD-070-11 Page 2 1. APPLICATION DETAILS 1.1 Applicant: Durham Region Works Department on behalf of Durham Region Police Services 1.2 Owner: Regional Municipality of Durham 1.3 Proposal: To amend the Durham Regional Official Plan to permit the extension of water and sanitary sewer services outside of the Urban Area to serve the proposed Durham Regional Police Service facility. 1.4 Area: approximately 25 hectares 1.5 Location: 2046 Maple Grove Road; 2192, 2204, 2206 & 2210 Bloor Street; Part Lots 19 and 20, Concession 2, Former Township of Darlington. 2. BACKGROUND 2.1 On May 9, 2011, the Region of Durham submitted an application to amend the Durham Regional Official Plan. The purpose of the applications is to extend municipal watermain and sanitary sewer services outside the Bowmanville Urban Area boundary, along Regional Highway No. 2, to service the proposed Durham Regional Police Service facility in Clarington. The Durham Police Services facility is a public use and as a result the use of the land is not subject to either an Official Plan Amendment or Zoning By-law Amendment. The facility will contain four buildings. The 16th Division building will be on the east side of the site. A Forensic Identification Unit, a Centre of Investigative Excellence and a Warehouse will be constructed on the west side. The site is divided by a tributary of Darlington Creek which is proposed to be realigned by this proposal (see Attachment 1). 2.2 The Region of Durham held a public meeting on this application on June 1.4, 2011. Two residents attended and questioned if services were extended would they be required to connect. Regional staff advised that there would be no obligation for property owners to connect to municipal services. It was also indicated that properties on the north side of Regional Highway 2 would not be permitted to connect to services due to their location within the Greenbelt Plan. 2.3 The following studies were submitted in support of this application: • Environmental Impact Study Report; • Environmental Site Assessment reports; • Transportation Overview; • Functional Servicing and Floodplain Feasibility Analysis; • Stage 1 Archaeological Assessment Preliminary Report; REPORT NO.: PSD-070-11 Page 3 • Preliminary Agricultural Impact Study; and • Planning Justification Report. 3. LAND CHARACTERISTICS AND SURROUNDING USES 3.1 The subject lands are comprised of a number of parcels of land at the southwest corner of Regional Highway 2 and Maple Grove Road. The lands are used for agriculture and the Darlington Creek and one of its tributaries and their associated valleylands pass through it. 3.2 The surrounding uses are as follows: North - Hamlet residential (Maple Grove) South - Rural residential and agricultural East - Hamlet residential, agricultural and commercial (Rekker's Greenhouse) West - Rural residential 4. PROVINCIAL POLICY 4.1 Provincial Policy Statement The Provincial Policy Statement indicates planning for infrastructure and public service facilities shall be integrated with planning for growth so that these are available to meet current and projected needs. Infrastructure and public service facilities should be strategically located to support the effective and efficient delivery of emergency management services. Planning for sewage and water services shall direct and accommodate expected growth in a manner that promotes the efficient use of existing municipal sewage services and municipal water services. These systems are to be provided in a manner that: • Can be sustained by the water resources upon which such services rely; • Is financially viable and complies with all regulatory requirements; and • Protects human health and the natural environment. 4.2 Provincial Growth Plan The Growth Plan contains a number of principles that provide the basis for guiding decisions on how land is developed, resources are managed and public dollars invested. One of the principles is to "Optimize the use of existing and new infrastructure to support growth in a compact efficient form." REPORT NO.: PSD-070-11 Page 4 Development may be permitted in rural areas if it is related to the management or use of resources, resource-based recreational activities, and rural land uses that cannot be located in settlement areas. When constructing or expanding municipal water and wastewater systems the Growth Plan requires the following conditions to be met: • Strategies for water conservation and other water demand management initiatives are being implemented in the existing service area; and • Plans for expansion or for new services are to serve growth in a manner that supports achievement of the intensification target and density targets. Community infrastructure planning, land use planning and community infrastructure investment are to be co-ordinated to implement the Growth Plan. Planning for growth will take into account the availability and location of existing and planned community infrastructure so that community infrastructure can be provided efficiently and effectively. An appropriate range of community infrastructure should be planned to meet the needs resulting from population changes and to foster complete communities. Services planning, funding and delivery sectors are encouraged to develop a community infrastructure strategy to facilitate the co-ordination and planning of community infrastructure with land use, infrastructure and investment through a collaborative and consultative process. 5. OFFICIAL PLANS 5.1 Durham Regional Official Plan The Durham Regional Official Plan designates the subject lands as Major Open Space and Hamlet. Hamlets shall be the predominant location for residential and social, commercial and employment development serving the needs of the surrounding area. The predominant use of lands in the Major Open Space Areas shall be conservation, and a full range of agricultural, agricultural-related and secondary uses. Municipal facilities, including police stations, are encouraged to locate within Urban Areas, but shall be permitted in any designation, provided they are compatible with, and have minimal impacts on their surroundings. The extension of municipal services to rural areas is not permitted unless there is a serious health or environmental concern identified by the Region's Medical Officer of Health or other designated authority. REPORT NO.: PSD-070-11 Page 5 The Environment policies require the completion of an environmental impact study to be completed as the site contains key natural heritage and hydrological features (stream and valleylands). 5.2 Clarington Official Plan The Clarington Official Plan designates the subject lands as Hamlet Residential, Green Space and Environmental Protection Area. The predominant use in Hamlets is for single detached residential dwellings. Other uses such as schools, community facilities, places of worship, general stores, service stations, and farm-related commercial uses which are compatible with the surrounding area are permitted. Green Space lands are for conservation and active or passive recreational uses, agriculture, and farm-related uses. Environmental Protection Areas recognize natural environment components. An Environmental Impact Study is required as the site contains significant valleylands and a tributary of Darlington Creek as identified on Schedule "C" — Natural Heritage System. Community Facilities, including police stations, are encouraged to locate in urban areas and hamlets to enable easy accessibility by the majority of the population and, where possible, to utilize full municipal services. Community facilities are subject to the policies of the land use designations where these facilities are located. 6. ZONING BY-LAW 6.1 Zoning By-law 84-63 zones the subject lands "Agricultural (A)" and "Residential Hamlet (RH)". The Section 3.18 Public Uses of the General Provisions of Zoning By- law 84-63 permits public services provided by all levels of Government to be located within any zone category. 7. SUMMARY OF BACKGROUND STUDIES 7.1 Environmental Impact Study Report The Environmental Impact Study Report recommended the following mitigation measures for the proposed development: • Provide infiltration from the rooftops and landscaped areas to offset reductions to groundwater recharge created by the development. This would provide a 'balance' with respect to maintaining groundwater recharge for local well. • It was determined that Darlington Creek and its tributary had been straightened, likely due to agricultural activities. Through the proposed relocation of the creek REPORT NO.: PSD-070-11 Page 6 tributary, it is recommended that the proposed design use natural channel design principles to replicate a natural meander. • The proposal involves grading works to remove a portion of the site from the floodplain. Design of these works to create the new stream corridor for Darlington Creek must satisfy CLOCA flood policies. • A small area of sugar maple forest at the northwest corner of the site provides an opportunity for enhancement. Wildlife habitat should be increased as a result of the restoration of Darlington Creek and the naturalization of the edges of the development. • Further survey for birds should be conducted to determine if the site provides a habitat for bobolink and other area-sensitive species. • Design considerations for Darlington Creek should incorporate habitat conditions for Rainbow Trout. • A 60 metre channel corridor for Darlington Creek is required. This includes a 30 metre natural vegetated riparian buffer on each side. 7.2 Environmental Site Assessment Reports Phase I and II Environmental Site Assessments were completed. Based on the findings of the Phase I, Phase II investigated the soil and groundwater condition in areas where storage tanks were present; and the soil quality of fill piles located at the southeast corner of the site. A General soil and groundwater condition for the site was also provided. It was determined that the subsurface soil and groundwater condition of the site meets the current MOE standards for the proposed use. An isolated exceedance of molybdenum was discovered in one of the groundwater samples. The Phase II report recommends that it may be prudent to conduct additional investigation to further assess the level of molybdenum. The MOE Standard was revised on July 1, 2011 which should be reviewed to determine if restoration or risk assessments are required. 7.3 Transportation Overview The transportation overview indicates that the proposed access configuration will meet the needs of the Project subject to select off-site road improvements that will be identified in a supplementary study. The primary public access is from Maple Grove Road. A direct access to the Forensic Identification Unit will be from Bloor and a direct access to Highway 2 will be provided in the second Phase of the Project and is intended for staff only. Road improvements required to mitigate potential traffic impacts associated with the project will be identified in a traffic impact study. It is anticipated that 1,200 parking spaces will be provided. The final requirements will be confirmed as detailed programming for the individual buildings is complete. The REPORT NO.: PSD-070-11 Page 7 parking provided will be sufficient to ensure no `spill-over' of parking onto adjacent public streets or properties occurs. 7.4 Functional Servicinq and Floodplain Feasibility Analysis The analysis concluded that the site can be developed in a manner which will meet the requirements of Clarington, the Central Lake Ontario Conservation Authority and Durham Region. The analysis is conceptual in nature and can be used as a starting point during the final design stage. 7.5 Stage 1 Archaeological Assessment Preliminary Report The report recommended that a Stage 2 survey be completed prior to development. 7.6 Preliminary Agricultural Impact Study This study assumed that justification of the need for the site had been conducted by Durham Region Staff in order to fulfil the requirements of the Provincial Policy Statement. With that assumption, it was determined that although most of the subject lands have been classified as prime agricultural lands, there is little possibility of locating the DRPS complex on lower capability lands. Minimum Distance Separation requirements impact the southwest corner of the property which is an area that will not have a building containing personnel working permanently. 7.7 Planninq Justification Report The Planning Justification Report concluded that the proposal is compatible with the area and local context and will provide an efficient municipal facility. It states that it is well suited for municipal service facilities and community uses due to its proximity between Bowmanville and Courtice, and the proximity to existing municipal urban servicing. It also stated that the site is consistent with the policy direction established in the Provincial Policy Statement, the Greater Golden Horseshoe Growth Plan, the Durham Regional Official Plan, Municipality of Clarington Official Plan and Zoning By- law 84-63. The report justifies this location as appropriate because it provides sufficient land area, is in proximity to existing municipal services, is well positioned to service the Region and responds well to its immediate context. 8. STAFF COMMENTS 8.1 The proposal is a sprawling campus with four single storey buildings and 1200 parking spaces. It does not reflect the higher intensity development anticipated if the lands were to be part of an urban area along a major arterial road. The facility will serve a Region-wide need if the forensics centre is built in future phases. As for 16 Division Headquarters, it is well situated to provide services to both Courtice and Bowmanville which will contain the majority of the Clarington population. REPORT NO.: PSD-070-11 Page 8 8.2 Both the Clarington Official Plan and Region of Durham Official Plan encourage municipal facilities including police stations to be located in urban areas. However, such a use is permitted in the rural area provided it is compatible with surrounding uses and has minimal impacts on its surroundings. As a result the Official Plan Amendment is not to permit the proposed police services facility, but rather to allow municipal services to be extended beyond the Bowmanville urban area boundary to these lands. 8.3 The Planning Justification Report submitted in support of the application stated that the proposal is consistent with the policy direction established in the Provincial Policy Statement and the Greater Golden Horseshoe Growth Plan. However, this document did not address key policies as they relate to the proposal. Discussion on the Provincial Policy Statement did not consider the policies regarding "Sewage and Water". When discussing the Growth Plan, policies on "Water and Wastewater" were not included. In considering a proposal to extend municipal services to a rural area, these policies should be addressed to determine conformity. 8.4 Due to security reasons, Regional staff has been unable to provide details on the site selection criteria or on other locations considered for the Durham Regional Police Services facility. Without this information, it is difficult for staff to conclude whether or not the proposal conforms with the Provincial Policy Statement and the Growth Plan Policies not discussed in the Planning Justification Report. 8.5 As it is the responsibility of Regional Planning Staff to implement Provincial policies, the following items detailed in the Provincial Policy Statement and the Growth Plan should be satisfied in order to make a positive recommendation on the application: • The extension of services to the rural area for this development must be both justified and economical; • The extension of services and the location of the facility will be provided in a coordinated, efficient and cost-effective manner; • Consideration had been given to locating in an area with existing infrastructure; • There were no reasonable locations that would avoid the development on prime agricultural lands; • The expansion of services will serve growth in a manner that supports intensification and density targets; and • Infrastructure planning and investment has been coordinated to implement the Growth Plan. 8.6 The Clarington Engineering Services, Clarington Operations Services and Clarington Emergency and Fire Services departments provided detailed design comments which will be provided to the applicant for consideration through the site plan approval process. 9. CONCURRENCE: Not applicable REPORT NO.: PSD-070-11 Page 9 10. CONCLUSION 10.1 The Municipality of Clarington has no objections with the Regional approval of application ROPA-2011-0004, provided that the Regional Municipality of Durham is satisfied that the application demonstrates compliance with all relevant provincial policies. CONFORMITY WITH STRATEGIC PLAN — Not Applicable Staff Contact: Tracey Webster, Senior Planner Attachments: Attachment 1 - Key Map List of interested parties to be advised of Council's decision: Cliff Curtis, Commissioner of Public Works, Regional Municipality of Durham, Dave Simpson, Durham Region Police Service Thor Kotowycz, Regional Municipality of Durham Henry Tang, Regional Municipality of Durham Tania Whitehead Lynn Robinson Robert Burton Dave and Cathy Tonks Edward Oegema Attachment 1 To Report PSD-070-11 nui avoij = N33b9 E > M 0 E C :3 CL w clv02j 3AO2]D-r---1 31dVIN Q E 0 Q Q CL M w E CL C -- Q 5 .0 GVMJ I,OH C 05 CL t�: 0 U) 00 -i L: a a) 0 GVMJ ma 5H l 0 tM 2 0 CL 1i Z GVO�l 3AMPD 31dVT�.- ----------------- A (iu LW ---------------- ------------------------ Ot w w UP-®r S-to4rOWAS M I CO Ulm